Introduction...... 1 Document Organization ...... 1 Project Process ...... 3 Stakeholder Coordination ...... 4 Vision, Goals, and Objectives ...... 5 Existing Conditions ...... 7 System Overview ...... 7 City of Tallahassee ...... 9 ITS Infrastructure ...... 9 Communications ...... 9 Traffic Management Center ...... 16 Traffic Signals...... 17 Bicycle Technology...... 18 Transit ...... 19 Florida State University ...... 19 FSU Parking Technology ...... 21 FSU Transit Technology ...... 21 FSU Bicycle Technology ...... 21 Needs Assessment ...... 22 Safety and Mobility Needs ...... 22 Congestion Data ...... 22 Safety Data ...... 28 Priority Corridors ...... 29 Additional ITS Needs ...... 29 Emerging Technology Considerations ...... 30 Communications for Autonomous and Connected Vehicles ...... 30 Network Architecture Enhancement ...... 31 Recommendations ...... 32

Project Identification ...... 32 Traffic Management ...... 33 Adaptive Traffic Signal Control ...... 33 System Detectors ...... 35 CCTV Cameras ...... 36 Smart Work Zones...... 40 Flashing Yellow Arrows ...... 41 Travel Time Reliability System Expansion ...... 42 Cabinet Upgrades...... 45 Managed Field Ethernet Switch Replacement ...... 45 Connected Vehicle Infrastructure ...... 46 ATMS Upgrades ...... 47 Transit Management ...... 47 Transit Signal Priority ...... 48 Traveler Information ...... 49 Website Connectivity ...... 49 I-10 Trailblazers ...... 50 Performance Measures...... 51 Bicycle Detection ...... 53 Transportation Management Center ...... 55 Communications ...... 56 Bandwidth Demand ...... 56 Communications Network – Redundancy Expansion...... 57 Budgetary Estimates ...... 61 Implementation Plan...... 63 Prioritization Criteria ...... 63 Project Ranking...... 68 High Level Deployment Plan ...... 69 Staffing Plan ...... 70 Conclusion...... 73

List of Tables

Table 1: Stakeholder List ...... 4 Table 2: Master Plan Goals and Objectives ...... 5 Table 3: City of Tallahassee ITS Devices ...... 9 Table 4: Top Bottleneck Locations ...... 23 Table 5: Crash Type by Location ...... 28 Table 6: Average Bicyclists per Hour – 2014 to 2018 ...... 54 Table 7: Preliminary Bandwidth Analysis ...... 57 Table 8: Estimated Project Costs ...... 61 Table 9: Safety Criteria...... 64 Table 10: Mobility Criteria...... 65 Table 11: Accountability Criteria ...... 66 Table 12: Prioritization Rubric ...... 67 Table 13: Secondary Prioritization Rubric – Geographic Projects ...... 67 Table 14: Project Ranking ...... 68 Table 15: Project Deployment Timeframes ...... 69 Table 16: Proposed City Staffing Levels ...... 71

List of Figures

Figure 1: Tallahassee ITS Master Plan Process ...... 3 Figure 2: City of Tallahassee Location Map...... 8 Figure 3: BlueTOAD Device Locations ...... 11 Figure 4: CCTV Camera Locations ...... 12 Figure 5: Signalized Intersections – Citywide ...... 13 Figure 6: Signalized Intersections – Downtown ...... 14 Figure 7: Existing Fiber Network ...... 15 Figure 8: Tallahassee RTMC ...... 16 Figure 9: Bicycle Technology ...... 18 Figure 10: SPaT Corridor ...... 20 Figure 11: AM Peak TTI – Citywide ...... 24 Figure 12: AM Peak TTI – Downtown ...... 25 Figure 13: PM Peak TTI – Citywide...... 26 Figure 14: PM Peak TTI – Downtown ...... 27 Figure 15: Network Topology Layouts ...... 31 Figure 16: Proposed Adaptive Corridors ...... 34 Figure 17: Proposed CCTV Camera Locations ...... 39 Figure 18: Mobile Camera Trailer ...... 40 Figure 19: Flashing Yellow Arrow ...... 41

iii

Figure 20: Five-Section Head...... 41 Figure 21: Travel Time Detection Concept ...... 42 Figure 22: Proposed Bluetooth Locations ...... 44 Figure 23: Proposed Fiber Extension...... 59 Figure 24: Proposed Topology and Hub Locations ...... 60 Figure 25: Excerpt from FHWA Guidelines for Staffing (2009) ...... 71

List of Appendices

Appendix A: Stakeholder Meeting Materials Appendix B: Project Cost Estimates Appendix C: Detailed Project Scoring

Acronym List

AADT Average Annual Daily Traffic AAM Active Arterial Management APC Automated Passenger Counter ATC Advanced Traffic Controller ATIS Advanced Traveler Information Systems ATMS Advanced Transportation Management System ATSC Adaptive Traffic Signal Control ATSPM Automated Traffic Signal Performance Measures AV Autonomous Vehicle AVL Automatic Vehicle Location CCTV Closed Circuit Television CIP Capital Improvement Program CV Connected Vehicle DMS Dynamic Message Sign DSRC Dedicated Short Range Communication FDOT Florida Department of Transportation FHWA Federal Highway Administration FMS Freeway Management System FSU Florida State University FYA Flashing Yellow Arrow IP Internet Protocol ITS Intelligent Transportation Systems LPR License Plate Readers MVDS Microwave Vehicle Detection System NCHRP National Cooperative Highway Research Program

OBU On-Board Unit PSC Public Safety Complex RITIS Regional Integrated Transportation Information Systems RSU Roadside Unit RTMC Regional Transportation Management Center RWIS Road Weather Information System SHS State Highway System SPa T Signal Phasing and Timing TATMS Tallahassee Advanced Transportation Management System TOC Traffic Operations Center TSM&O Transportation Systems Management & Operations TSP Transit Signal Priority UTCS Urban Traffic Control System V 2 I Vehicle-to-Infrastructure V 2 V Vehicle-to-Vehicle

Introduction

The City of Tallahassee’s established history of investing in Intelligent Transportation Systems (ITS) began in 1999 with the original installation of a City-funded advanced transportation management system (ATMS), fiber optic cable, and arterial traffic cameras. Today, the City remains at the leading edge of transportation management. As the largest city in the Panhandle Region and the only incorporated municipality in Leon County, Tallahassee continuously strives to innovate and integrate technology for the purpose of operating, improving, and managing the existing multi-modal transportation system.

Tallahassee is home to both Florida A&M University and Florida State University, as well as the Florida State Capitol. On any given day, the diverse population of Tallahassee, including over 67,000 students, legislative members, and local residents, relies on the transportation network. Maintaining a technologically advanced ITS and a robust communications network are essential to manage a safe and reliable transportation system in the state’s capital city. As the future growth of Tallahassee is inevitable, strategically planning for it is essential.

The City of Tallahassee partnered with the Capital Region Transportation Planning Agency (CRTPA) to develop this ITS Master Plan and identify opportunities to expand and develop technology to support City operations and accommodate the growing demand on the mobility infrastructure. The purpose of this document is to provide a comprehensive roadmap for planning, development, and implementation of ITS technologies and communications assets.

DOCUMENT ORGANIZATION

This document is organized into the following major sections:

• Introduction: This section provides an overview of the project, summarizes the plan’s purpose, and documents the process used to develop this plan. • Stakeholder Coordination: This section discusses the vision and operational goals identified by key project stakeholders. • Existing Conditions: This section details the information collected during the course of this effort to document how the City currently operates with respect to ITS. • Needs Assessment: This section identifies the needs identified based on stakeholder input. • Deployment Recommendations: This section includes the methodology for project development and proposed device locations. • Prioritized Implementation Plan: This last section identifies the schedule, partnerships, and funding required to support the recommended projects.

PROJECT PROCESS

The process of developing this ITS Master Plan was a phased approach. Figure 1 displays the major milestones that occurred during this process. Each section of this Plan corresponds to a major milestone and provides more details on the methodology and summarizes all relevant data.

Figure 1: Tallahassee ITS Master Plan Process

Stakeholder Coordination

The ITS Master Plan process began with a kick-off meeting to engage relevant stakeholders in a discussion on the City’s existing ITS. This effort was facilitated to collect data and gather information on existing City infrastructure and devices, day-to-day operational procedures, future planned and programmed projects for both the City and adjacent agencies (Leon County, FDOT District 3). The information gathered gave insight to the existing and expected citywide conditions. The main objectives of the initial meeting were to bring together key stakeholders to discuss the current inventory of ITS devices in the Tallahassee metro area and establish the underlying vision, goals, and objectives for the ITS Master Plan. The attendees also provided insight on processes and current coordination between the various departments in the City to support traffic, incident, work zone, and special event management. The insight helped identify needs and gaps in the existing system. The list of attendees is shown below in Table 1.

Table 1: Stakeholder List

AGENCY DEPARTMENT

City of Tallahassee Traffic Operations Capital Region Transportation Planning Agency -- City of Tallahassee Transit StarMetro City of Tallahassee Traffic Engineering

City of Tallahassee Growth Management Leon County Public Works Leon County Growth Management

Florida Department of Transportation Central Office TSM&O

Florida Department of Transportation District 3 Traffic Operations

The stakeholders were crucial in providing a background of the City’s ITS and its role in the region. Through this engagement, a comprehensive system inventory was completed and summarized in the sections that follows. Handouts, presentation material, and meeting notes from this meeting are provided in Appendix A. A second workshop to review project recommendations and the high-level implementation plan was also held. The workshop provided information about existing and future needs for the City of Tallahassee ITS and introduced the high-level project recommendations. During the workshop participants discussed each of the recommendations and provided feedback for inclusion and refinement. The attendees scored recommendations on a priority scale from one to three, with

one being the lowest priority and three being the highest. The priority ranking assigned by each of the stakeholders were averaged and included in the final project ranking. Vision, Goals, and Objectives

The information and guidance provided during the stakeholder workshops steered the development of the City of Tallahassee ITS Master Plan vision. This vision was used to guide the development of ITS project recommendations and as a means to clearly define a focus and direction moving forward. The ITS Master Plan vision defines the future of ITS in Tallahassee:

Vision Maximize the transportation system efficiency and performance using innovative technologies and regional collaboration to promote reliable mobility throughout the vibrant capital city region.

Statement

Goals and objectives were also established consistent with input gathered from stakeholder discussions. Table 2 summarizes the goals and objectives for this Master Plan. These goals and objectives are derived from the vision stated above and form the framework for implementation strategies by establishing manageable and tangible statements. The recommended ITS projects and solutions developed through the ITS Master Plan strive to achieve these go als and objectives.

Table 2: Master Plan Goals and Objectives

GOAL OBJECTIVE

• Identify technologies that may be appropriate to Document Opportunities for integrate into the system in the future Considering Deployment of New • Develop deployment strategy for future Technologies implementation • Stay at the forefront of technology to provide system users with more traveler information

Partner Internally and Externally • Coordinate with City departments to share data and projects beneficial to each other’s operations

GOAL OBJECTIVE

• Collaborate with agencies in the region on initiatives to provide quality services to the public • Leverage existing projects

• Include deployment implementation plan of devices in new areas of the City Establish a Strategy for Future • Include sufficient communications network for Deployment of Additional Equipment additional expansion • Develop high-level funding expenditure plan for deployment of future equipment

The continued maturity of the City’s ITS, and the ongoing evolution of technologies will require the City to refocus and develop refined ITS goals and objectives to enhance the longevity and sustainability of the system.

Existing Conditions

The City of Tallahassee owns, operates, and maintains a wide array of ITS and signal system elements. The City’s signal system has evolved from a mainframe Urban Traffic Control System (UTCS) in a small office at City Hall to a full featured advanced transportation management system (ATMS) supporting arterial management, freeway management, advanced traveler information systems (ATIS), and incident management systems. This system is housed in the Tallahassee Regional Transportation Management Center (RTMC) at the Tallahassee -Leon County Public Safety Complex (PSC).

The sections that follow describe the existing City ITS infrastructure, systems, and operational procedures. Data collection to support this inventory consisted of gathering City maps, stakeholder engagement, reviewing Capital Improvement Program (CIP) lists, and various other documents to provide insight into the existing ITS conditions. This section provides a comprehensive picture of the ITS existing conditions and communications network throughout the City as of June 2018.

SYSTEM OVERVIEW

Actively managed arterials and the array of bus, bicycle, and pedestrian facilities all compose the City’s multimodal transportation network. The City offers a wide network of roadways (highlighted in Figure 1) including Interstate 10 (I-10), US Route 27, US Route 90, US Route 319, State Road 20 (SR 20), State Road 61 (SR 61), and State Road 363 (SR 363). Along this extensive roadway network, the City of Tallahassee operates and maintains ITS infrastructure owned by the following entities:

• City of Tallahassee • Leon County • Gadsden County • Florida State University • Florida Department of Transportation (FDOT) The sections that follow detail the ITS infrastructure operated and maintained by the different city agencies including the City of Tallahassee, StarMetro, and Florida State University.

Figure 2: City of Tallahassee Location Map

CITY OF TALLAHASSEE ITS Infrastructure

The ITS field devices are the most visible components of the system. ITS infrastructure includes dynamic message signs (DMS), closed circuit television (CCTV) cameras, and traffic signal controllers. The devices are used for traffic monitoring, detection, and traveler information.

The City currently operates and maintains 357 traffic signals, 97 CCTV cameras, and 80 BlueTOAD devices. In 2008, the City entered into a Joint Participation Agreement with FDOT, which identified the I-10 corridor as a site for an ITS Freeway Management System (FMS). The FMS elements along the 19-mile stretch of I-10 in Leon and Gadsden counties include 26 CCTV cameras, 51 microwave vehicle detection devices (MVDS), eight DMSs, eight license plate readers (LPR), and one Road Weather Information System (RWIS). All devices, listed in the table below, are connected to the telecommunications infrastructure and linked to the RTMC for monitoring by the City.

Table 3: City of Tallahassee ITS Devices

DEVICE CITY FMS

Traffic Signals 357 - System Detectors 400 - CCTV Cameras 97 28 Dynamic Message Signs 1 8 BlueTOAD 80 - Microwave Vehicle Detection - 51 System Universal Power Supply 98 19 Fiber Optic Cable 190 miles - Cellular Communications 24 Verizon Cell Modems -

Figure 3 through Figure 6 provide an overview of the locations of these devices. Effective July 2020, the City and the Department transitioned FMS control to the Northwest Florida Regional Transportation Management Center (NWFRTMC). A new Joint Participation Agreement (JPA) was executed with FDOT for the expansion of the Active Arterial Management (AAM) Program. This program, operated by the City, will monitor and control traffic flow along the State Highway System (SHS) within the Leon County region. Communications

The City of Tallahassee’s communication infrastructure is comprised of approximately 190 miles of fiber optic cable. Fiber optic cable is the main method of communication for the majority of the city’s ITS network, as it links all field devices back to the TMC. The ATMS fiber infrastructure

includes seven existing fiber-optic trunk lines, with fiber counts on each cable varying throughout the City (36-72 strands) and terminate at City Hall downtown. A 144 and 288 count underground trunk connects City Hall to the RTMC. A fiberoptic backbone was also installed along I-10 and US 90 from western Gadsden County to the RTMC. This 96-fiber trunk line expanded the City’s current ATMS by incorporating the interstate system. In 2020 FDOT will connect the NWFRTMC fiber to the Tallahassee FMS fiber. FDOT District 2 will complete a project to expand the Tallahassee fiber optic backbone to the Madison County line providing the NWFRTMC with complete FMS coverage from the Alabama state line throughout District 3.

ATMS communication is additionally enhanced using 24 cellular modems. These devices are located throughout the City where fiber optic cable was determined not feasible due to cost, time, or physical obstacles. Figure 7 provides an overview of the current fiber network.

Figure 3: BlueTOAD Device Locations

Figure 4: CCTV Camera Locations

Inset shown on next page

Figure 5: Signalized Intersections – Citywide

Figure 6: Signalized Intersections – Downtown

Inset 1

Figure 7: Existing Fiber Network

Traffic Management Center

The City’s ITS devices and traffic signal system are monitored and controlled from the Tallahassee RTMC located at 911 Easterwood Drive in Tallahassee, Florida. The RTMC serves as the control center for the state-of-the art Tallahassee Advanced Transportation Management System (TATMS). The City constructed the RTMC with 12 operator workstations, ten offices, and a conference room. The RTMC includes a double stacked video wall comprised of 48-inch video monitors. The bottom half includes 21 monitors utilized by the traffic operations staff to monitor and manage the traffic system. The top half, which also includes 21 monitors, is controlled by the Leon County Emergency Operations Center to display weather and news.

City staff are currently responsible for monitoring the ATMS Monday through Friday from 6: 00 AM to 7:00 PM, as well as during all Florida State University home games. The RTMC also provides a backup, redundant system for monitoring the FDOT District 3’s FMS. As a designated FDOT Satellite Transportation Management Center (STMC), the Tallahassee RTMC will serve as the emergency backup for the NWFRTMC. The RTMC allows for center-to-center communications with the District 3 TMC in Chipley, Florida and FDOT Central Office. The unique RTMC facility co-locates a number of key public safety related agencies including:

• Consolidated Dispatch Agency • Leon County Emergency Medical Services Administration • Operations Building for Emergency Medical Services • City of Tallahassee Fire Department Administration • Leon County Emergency Operations Center • City of Tallahassee RTMC • City of Tallahassee City Manager Emergency Management Command Center • Leon County Emergency Management • Consolidated Data Center

Figure 8: Tallahassee RTMC

Traffic Signals

The City of Tallahassee signal system currently includes 357 signalized intersection. The traffic signal system uses Intelight MaxTime local controller software monitored with Kimley-Horn’s KITS™ central system software. Kimley-Horn served as the software design, supply, and integration consultant for the implementation of a distributed control-based signal system facilitating a transition from the City’s existing UTCS to its current Windows™-based distributed central system in 1999.

Tallahassee KITS™ is configured to accommodate up to 256 control sections; 1,024 intersections; 12,288 system detectors; 1,000 count stations; 24 workstations; eight remote workstations; 16 docking workstations; 128 CCTV cameras; and 20 DMS with no modification to the software sizing constraints. In 2017, support was added for Intelight MaxTime controller software. The central system software also incorporates the ITS features of CCTV surveillance, video wall scheduling, and DMS control. Signal Phasing and Timing Challenge

The Signal Phasing and Timing (SPaT) Challenge was issued to state and local public-sector transportation agencies to collaborate in an effort to achieve deployment of Dedicated Short - Range Communications (DSRC) infrastructure. The challenge entailed deploying D SRC with SPaT broadcasts in at least one corridor or network (approximately 20 signalized intersections) in each of the 50 states by January 2020. FDOT Transportation Systems Management and Operations (TSM&O) Program has a renewed focus on arterial traffic management solutions and partnered with the City of Tallahassee for this challenge. Roadside Units (RSU) were deployed at 22 traffic signal intersections on US 90, (West Tennessee Street and Mahan Drive) from Duval Street to Walden Road just west of I -10. The RSUs broadcast SPaT and MAP (the geometric layout of the associated intersection) data for each individual signal location using 5.9 GHz DSRC.

FDOT is completing testing of portable on-board units (OBUs) and has confirmed the RSUs are broadcasting SPaT and MAP data via the DSRC. This implementation will support the advancement of Vehicle-to-Infrastructure (V2I) capabilities, especially related to intersection safety applications. Figure 9 highlights the signalized intersections included as part of this effort. Performance Measures

Performance monitoring is the collection, analysis, and reporting of data to track and assess resources used, work produced, and whether specific goals are achieved. The ultimate purpose of performance monitoring is not just reporting the performance of the system, but the development of actions that improve performance. It can also be used to demonstrate the value of operations through a process of continuous evaluation. An important aspect of performance monitoring is an analysis of why goals are (or are not) being achieved, and accomplishments to

meet goals. Once a performance program is in place, it is a simple matter to focus it on before and after conditions for implemented projects and policies.

Many agencies across the country are using Automated Traffic Signal Performance Measures (ATSPMs) as the foundation of their performance monitoring program. ATSPMs consist of a high-resolution data-logging capability added to existing traffic signal infrastructure and data analysis techniques. This provides agency professionals with the information needed to proactively identify and correct deficiencies. The City currently uses an ATSPM dashboard to collect high-resolution data which allows the City to manage traffic signal maintenance and operations in support of the agency’s safety, livability and mobility goals. The technology is cost effective, as ATSPMs can be applied to a wide range of signalized intersections and use existing infrastructure to the greatest extent possible. ATSPMs will also support the validation of other technologies and operational strategies, such as adaptive signal control and emerging connected vehicle applications. Bicycle Technology

Three automated bicycle counters are deployed within the City. These counters are located within protected bike lanes at two intersection locations:

• Pensacola Street and Martin Luther King Jr Boulevard • West Madison Street and Martin Luther King Jr Boulevard

Additionally, on the west end of the Capital Cascades bridge, the City installed a digital counter that displays daily and annual counts of cyclists and pedestrians that cross the bridge.

Figure 9: Bicycle Technology Sources: EcoCounter and Nue Urban Concepts

TRANSIT

StarMetro, Tallahassee’s public transportation system, serves the metro area with fixed-bus routes and dial-a-ride services. The existing fleet of 66 buses has Automatic Vehicle Location (AVL) systems deployed, which is an automated means of tracking vehicle location. In addition, arrival and departure boards are installed at several bus shelters allowing riders to take advantage of next bus arrival technology.

Average route ridership was historically tracked through the use of the on board farebox. StarMetro is transitioning out of that practice and have installed Automated Passenger Counters (APC) on 12 fleet vehicles. As of July 1st, 2019, StarMetro received grant funding that will be used to retrofit the rest of the fleet with APCs. The process for calibration takes nearly two years but preliminary on time performance data by route will be available late 2019.

FLORIDA STATE UNIVERSITY

FSU is a public university located in central Tallahassee. The institution has been recognized as one of the world’s most innovative universities and has deployed various transportation technologies throughout the campus. These deployments have been essential in streamlining parking procedures and increasing the safety of students. The current and future ITS technology deployed across the FSU campus are detailed below.

Figure 10: SPaT Corridor

FSU Parking Technology

Currently, there is loop based counting equipment deployed in all six garages on campus. These loop sensors track the daily entry and exit volume. This real-time garage occupancy data is displayed on variable message signs and provided to students through an in-house developed mobile application (FSU TRANZ). In the near future, FSU is planning to deploy license plate recognition (LPR) cameras at every garage access point. These cameras will ultimately replace the loop sensors, simultaneously conducting counts and collecting license plate information. This information will be shared with campus law enforcement as needed for security purposes. FSU Transit Technology

One of FSU’s goals is to possess an all-electric fleet of transit vehicles. Currently, the University has 20 new electric buses and has transitioned to a new tracking system (TransLoc). This new tracking system conducts automatic passenger counts, allowing students to have real-time information of space availability on each bus and bus location data. Wi-Fi and cellphone charging stations are included in FSU’s future transit plans as well. FSU Bicycle Technology

The University is in the process of installing covered bicycle parking across the campus. Bike lanes are proposed to be included in plans for all future roadway improvements that take place throughout the campus. The mobile application, RideShark provides its users the ability to search for rideshare opportunities, increasing the possibility of carpooling and creating an avenue for bike share opportunities.

Students also have access to a new kind of bike-sharing called Pace. Through the mobile applications, user have access to the fleet of 300 bicycles and information regarding the location of 50 racks concentrated mainly in Downtown Tallahassee. Unlike the traditional infrastructure, Pace bikes can be picked up or returned from any public bike rack in addition to the dedicated Pace racks.

Needs Assessment

A needs assessment is the evaluation of information from meetings and documents to identify needs that should be addressed by this ITS Master Plan. The combination of information from the inventory, the stakeholder engagement process, City staff expertise, congestion data, and safety statistics was used to assemble this assessment. The needs were used in conjunction with other criteria to develop project recommendations and map out an implementation plan for the City. It is the ultimate goal of this ITS Master Plan to recommend projects and strategies to address these existing needs and gaps. The project recommendations also consider future growth, anticipate future high-level needs, and consider emerging technologies.

SAFETY AND MOBILITY NEEDS

Residents of Tallahassee experience a variety of safety and mobility challenges every day such as unreliable commute times, crashes, and road closures due to work zones. Improving the safety and reliability of the Tallahassee transportation network will largely benefit motorists, bicyclists, pedestrians, and transit riders. Congestion Data

Congestion was evaluated using probe data provided by the Regional Integrated Transportation Information Systems (RITIS). RITIS is a web-based platform that aggregates travel times and speed data from roadway sensors and probe-based systems along the road network. The RITIS platform allows users to access available historical and real-time data for arterials throughout the state of Florida using data visualization and data analysis tools. The tools pro vided allow users to query and analyze performance measures from the historical data set. Analysis

Data provided by RITIS was analyzed to determine information regarding existing congestion status and hot spots throughout the City. These tools allows users to analyze traffic conditions on one or more stretches of road, providing data on metrics including travel time index, congestion, and historical speed over the selected time frame. A weekday analysis was conducted using data from January 1st, 2018 through December 31st, 2018.

The RITIS analysis network was created to include the entire Tallahassee arterial roadway network. The analysis network was loaded into the Bottleneck Ranking tool, which allows us ers to identify, rank, and explore bottleneck locations within an identified study area. Results are generated from the archived data set based on the specified date ranges. The tool ranks bottleneck corridors based on multiple factors including maximum qu eue length, daily duration, speed differential, and total delay. This visualization tool produced the following list of top bottleneck locations in the City.

Table 4: Top Bottleneck Locations

Rank Road Direction

1 US-27/Monroe Street at US-90/SR-10/Tennessee Street Southbound 2 US-90/Tennessee Street at US-27/SR-61/Monroe Street Westbound 3 SR-61/Monroe Street at US-90/Tennessee Street Southbound 4 SR-61/Monroe Street at SR-371/CR-1555/Gaines Street Southbound 5 US-27/Apalachee Parkway at SR-265/S Magnolia Drive Westbound 6 US-319/Capital Circle NE at US-90/SR-10/Mahan Drive Northbound 7 US-27/Monroe Street at SR-61/S Monroe Street Southbound 8 US-90/Mahan Drive at US-319/SR-261/Capital Circle NE Westbound 9 US-319/Capital Circle NE at US-90/SR-10/Mahan Drive Southbound 10 US-27/Monroe Street at Bradford Road/M.L. King Jr Boulevard Northbound

The average travel time index was also retrieved for all available corridors within the City. RITIS defines travel time index as the ratio of travel time in a peak period to travel time in free flow conditions. A travel time index of 1.50 would indicate that a 30-minute free flow trip would take 45 minutes in the peak period. The figures on the pages that follow visually shows the travel time index recorded for all available corridors during each one-hour morning and afternoon peak. The figures help to illustrate where the congestion occurs during the morning and afternoon peak hours. Understanding these priority corridors helps to identify locations that can significantly benefit from ITS solutions. Mobility challenges impact residents, commuters, and the delivery of goods and services. The corridors identified in the figures and listed in the table above are the top congestion areas, or “trouble spots” for the City of Tallahassee. The transportation technology solutions developed during the development of this ITS Master Plan target congestion mitigation along these priority corridors.

Figure 11: AM Peak TTI – Citywide

Figure 12: AM Peak TTI – Downtown

Figure 13: PM Peak TTI – Citywide

Figure 14: PM Peak TTI – Downtown

Safety Data

Signal Four Analytics is a statewide interactive, web-based geospatial crash analytical tool developed by the University of Florida. This system was designed to support the crash mapping and analysis needs of law enforcement, traffic engineering, transportation planning agencies, and research institutions in the state of Florida. Crash data – long and short form, collected electronically by Florida Highway Patrol and local law enforcement officers at crash sites throughout the state – is transmitted nightly to the GeoPlan Center and loaded into the Signal Four Analytics database. A query was completed for all crashes within the City of Tallahassee in 2018. The following corridors had the highest crash rate for the year 2018:

• US-90/Tennessee Street • Thomasville Road • US-27/Apalachee Parkway • US-319/SR-261/Capital Circle NE • SR-61/US-27/Monroe Street • Mahan Drive • Pensacola Street • Monroe Street • Tharpe Street The data provided by Signal Four Analytics included a detailed crash type description for each reported crash. The table below lists the crash type by location for each of the corridors, with the most predominant crash type being rear end crashes.

Table 5: Crash Type by Location

Major

Street

Tennessee St W Thomasville Rd Apalachee Pkwy Capital Cir NE Monroe St N Tharpe St W Mahan Dr Pensacola St W Monroe St S Angle 31 22 14 12 11 7 5 4 9 Animal 0 1 0 0 0 0 0 0 0 Bicycle 3 1 1 0 0 0 0 0 1 Head On 7 2 5 2 2 3 1 3 0 Left Turn 42 26 24 31 28 15 6 17 6 Off Road 15 10 4 6 7 7 4 2 3

Major

Street

Tennessee St W Thomasville Rd Apalachee Pkwy Capital Cir NE Monroe St N Tharpe St W Mahan Dr Pensacola St W Monroe St S Other 100 57 88 47 69 31 19 33 28 Pedestrian 1 2 0 0 0 1 0 3 0 Rear End 196 121 85 92 61 52 64 33 36 Right Turn 3 1 2 4 2 1 0 0 0 Rollover 0 0 0 0 0 0 0 0 1 Sideswipe 62 28 26 30 23 7 12 13 16 Unknown 24 5 9 7 19 2 2 5 7 Total 484 276 258 231 222 126 113 113 107

The corridors identified above are the top crash locations, or “hot spots” in the City of Tallahassee. The ITS strategies and technologies developed during the development of this ITS Master Plan contribute to improving safety along these priority corridors. Fewer incidents enhance the safety of the area and reduce congestion. Priority Corridors

Understanding where the congestion is during the morning and evening peak hours as well as the crash hot spots helps identify locations that can significantly benefit from the proposed transportation technology solutions. It is anticipated that congestion will continue to be a challenge within these areas and worsen over time as the City continues to grow and development increases. While there are several effective measures that agencies use to maximize system mobility and safety, ITS is effective in harnessing the benefits of emerging technologies to achieve that end efficiently. The City of Tallahassee recognizes the benefits of ITS operations and is committed to the inclusion of ITS into their suite of transportation initiatives.

ADDITIONAL ITS NEEDS

Based on the collective input of the regional stakeholders, additional needs in which enhanced ITS strategies or technologies can provide the greatest benefit were identified. These needs were largely related to changes in processes and policies to help support the success of the City’s ITS:

• Educate internal City Departments on ITS capabilities to increase the awareness and understanding of the benefits an ITS Program can provide to all City services. • Mainstream ITS components (devices, communications, data collection, shared control) into capital and transportation improvement programs and processes to expand/leverage the City’s ITS Program. • Expand the use and availability of ITS infrastructure, systems, and data that could benefit certain departments or external partner agencies in the region. • Provide sufficient and knowledgeable staffing (foundational staffing, organizational structure, and pursuing appropriate training and ongoing knowledge development) to support functions of the ITS Program. • Increase ability to distribute relevant information tailored to audience (i.e. provide real- time traveler information).

EMERGING TECHNOLOGY CONSIDERATIONS

The City of Tallahassee anticipates significant growth and further dependency upon its existing and planned ITS with the continued evolution of technology in the transportation indus try. In addition to the forthcoming recommended ITS projects, broader ITS technologies that encompass and bridge multiple focus areas were evaluated. This section includes a brief technical overview of several existing and some emerging ITS technologies identified for consideration as part of this ITS Master Plan. These applicable technologies were taken into consideration as project recommendations were developed. Communications for Autonomous and Connected Vehicles

As autonomous vehicle (AV) technologies are being implemented around the country, two options of wireless technology are leading: DSRC radio and 5G wireless technology. DSRC is currently the predominant technology in the U.S. Connected Vehicle (CV) market. The wireless technology enables vehicles to send and receive brief digital packets of information about their location, intentions, and speed. This communication option requires two components: OBUs and RSUs. An OBU is a transceiver that is normally mounted in or on a vehicle, or in some inst ances may be a portable unit. An RSUs is a transceiver that is mounted along a road or pedestrian passageway. An RSU broadcasts data to OBUs or exchanges data with OBUs in its communications zone. DSRC currently accommodates all necessary vehicle-to-vehicle (V2V) and vehicle-to-infrastructure (V2I) communications in modules that are already commercially available. However, there is no demand for DSRC, beyond connected vehicle applications.

Alternatively, wireless mobile carriers are preparing to deploy 5G technology. Today select carriers are working with state regulators to receive permission to install the thousands of micro cells necessary to support 5G transmission. Although the standards for this technology have yet to be defined, some of the potential benefits include greater interoperability, wider bandwidth, increased cybersecurity, and a decentralized network that runs on private cell towers. 5G

technology eliminates the need for dedicated roadside units, allowing agencies to reduce deployment and maintenance costs.

Both DSRC and 5G technologies offer the prospect of direct V2V and V2I communications. Both technologies also enable communications between vehicles and pedestrians. The two technologies use the same wireless frequencies, but have incompatible protocols and therefore cannot communicate directly. Network Architecture Enhancement

A network’s topology is a representation of the physical and/or logical layout of the communications between devices and how they are connected. The four common communication topologies are bus, star, ring, and mesh. In most cases, networks use a combination of these four types (shown in the figure below).

Figure 15: Network Topology Layouts

Bus topology interconnects multiple devices along the same communications link or channel, similar to a multi-drop channel in a serial network. Bus topologies are rarely (if ever) used in newly deployed, IP/Ethernet networks. A star topology uses a point-to-point connection similar to a bus topology, but the network appears to radiate outward from a single point. A ring topology uses a closed-loop, point-to-point connection between adjacent devices. A mesh topology uses multiple-point, multiple-path connections between devices. Each topology strikes a balance between resiliency and required communication links that correlate with cost.

The City of Tallahassee has both serial and IP/Ethernet communications architecture. The transition to an entirely IP/Ethernet architecture would provide the City with enhanced interoperability, sustainability, and redundancy. The best way to plan for emerging technologies is to provide a robust, high quality network capable of expansion.

Recommendations

The following series of ITS projects proposed for future deployment were developed based on the needs assessment, stakeholder input, direction from the City, and industry best practices. The established vision and objectives were used as guiding principles to develop the proposed projects. The overall process to develop and identify projects is summarized below. For each project identified, an overall project description, identification of the project coverage area, and a summary of benefits is provided. Additionally, high-level budgetary estimates were developed for planning purposes. The projects were then prioritized based on adherence to the established vision and objectives, estimated cost, and potential to provide the greatest benefit. Project Identification

Present and future needs were identified based on a review of current data and served as the foundation for the project recommendations developed. The project development approach consisted of analyzing data to identify needs, considering various ITS solutions, and determining the feasibility of the projects. The recommended projects include strategies, technologies, and staffing that will allow the City of Tallahassee to progress towards achieving the vision developed for the ITS Master Plan: Maximize the transportation system efficiency and performance using innovative technologies and regional collaboration to promote reliable mobility throughout the vibrant Capital City region. The recommended projects have been categorized into eight functional areas:

• Traffic Management • Transit Management • TMC • Traveler Information • Asset Management • Performance Measures • Bicycle Detection • Communications

The project recommendations are mapped back to the initial needs, providing a level of traceability for each. Creating this traceability is important to ensure the ITS Master Plan addresses the needs specific to the City of Tallahassee and provide benefits. Having a clear connection between the ITS Master Plan and the needs identified by staff helps foster trust from the stakeholders.

TRAFFIC MANAGEMENT

Traffic management refers to the typical day-to-day congestion management of roadways. The management of traffic focuses on the use of ITS infrastructure to improve congestion and disseminate roadway conditions to the public. Current day-to-day operations at the Tallahassee RTMC focus primarily on active arterial management.

Traffic signal control systems are the primary tools used for active arterial management. Traffic signals throughout the City of Tallahassee currently operate with actuated -coordinated timings during peak hours and actuated-uncoordinated timings during overnight hours, with varied coordinated settings by time-of day. City staff routinely conduct studies on intersections based on recurring congestion, known issues, and complaints received from the public. Additionally, the staff will actively manage the downtown arterial network and change the signal timing plans based on the special events in the downtown area. This functional area includes strategies targeted at proactive operation of the City’s traffic signal system to deliver solutions that improve efficiency, safety, and reliability of signalized intersection operations. The primary objective of this functional area is improved traffic management focused on both recurring and non-recurring congestion. Based on this need, recommended strategies for consideration are listed below. Implementation of these recommendations will improve the traffic management capabilities of the City and provide additional opportunities for active arterial management. Adaptive Traffic Signal Control

Adaptive traffic signal control (ATSC) is the dynamic adjustment of traffic signal timing using vehicle detection to accommodate real-time changes in traffic patterns and demand. ATSC systems continuously monitor arterial traffic conditions and the queuing at intersections to dynamically adjust the signal timing. The system’s predictive algorithms account for real-time data collected from field equipment, as well as historical traffic data stored in a central database.

Timing adjustments are implemented by the local controllers by transitioning from existing time-of-day plans. The predictive algorithms evaluate the traffic data as much as once per second to determine the future traffic patterns and demand, and implement traffic signal timing modifications in anticipation of that future traffic demand. ATSC systems can adjust to accommodate traffic conditions more proactively than time-of-day coordination which are typically more fixed or reactive to recurring traffic conditions. Coverage Area

In an effort to improve traffic flow and reduce delay throughout the Tallahassee area, select corridors in the city may benefit from an adaptive traffic system. According to the Federal Highway Administration (FHWA), ATSC technologies are best suited for arterials that e xperience

highly variable or unpredictable traffic demand for which multiple signal timing solutions are necessary during a typical time-of-day period.

A review of the major corridors throughout the City were completed with special consideration given to those with a higher Average Annual Daily Traffic (AADT). AADT is a measure that looks at total volume of vehicular traffic on a roadway for a year divided by 365 days. Consideration was also placed on the surrounding land uses of each major corridor. 2017 AADT and current land use composition was obtained from FDOT’s Transportation Data and Analytics GIS Data Directory. A high-level evaluation was conducted, and the following corridors were identified as recommended locations for deployment of ATSC systems:

⚫ US 27 from South Monroe Street to Conner Boulevard – 14 intersections ⚫ US 90 from North Monroe Street to Capital Circle NW – 18 intersections

Both corridors contain diverse land use composition including retail, office space, residential, public/institutional, and industrial. The project limits are illustrated in Figure 16. Figure 16: Proposed Adaptive Corridors

Project Benefits

ATSC is typically deployed to mitigate corridors with erratic peak travel times, large amounts of pedestrian traffic, and a need to reoptimize periodically. This includes being able to manage tourist, weather, or special event generated traffic demands beyond traditional peak periods experienced on most roadways. According to FHWA, the main benefits of ATSC technology over conventional signal systems are that it can1:

⚫ Continuously distribute green light time equitably for all traffic movements ⚫ Improve travel time reliability by progressively moving vehicles through green lights ⚫ Reduce congestion by creating smoother flow

1 FHWA. EDC-1: Adaptive Signal Control Technology. 2017. https://www.fhwa.dot.gov/innovation/everydaycounts/edc-1/asct.cfm

⚫ Prolong the effectiveness of traffic signal timing

It is important to note that ATSC systems will not increase the capacity of a facil ity but can serve to optimize the throughput of traffic. A significant issue with ATSC systems is the importance of the system’s ability to detect both vehicle presence and vehicle queues. For this reason, the vehicular detection configuration is a significant cost factor when considering the implementation of ATSC systems. Careful evaluation should be completed regarding the feasibility of each corridor before deploying a system. System Detectors

Detection at signalized intersections is primarily used to determine presence, volume, speed, and occupancy of motorized vehicles. The in-pavement inductive loop detector is the most common sensor used in traffic management applications. When a vehicle stops on or passes over the loop, the inductance of the loop is decreased causing the electronics unit to send a pulse to the controller, indicating the presence or passage of a vehicle. With the installation of inductive loops, speed can be measured by using two sensors a known distance apart or estimated from one sensor using the effective detection zone and approximate vehicle lengths. Most of the existing traffic signals in the City are actuated and equipped with loop detectors that detect vehicle presence, but do not detect speed or flow. Additionally, wireless magnetic sensors embedded in the road, sometimes referred to as pucks or pods, can be used to detect vehicles. The system works by sensing the disturbances in the earth’s magnetic field that occur due to the presence of a car or motorcycle2.

Alternate detection types such as radar detectors, classified as microwave (non-intrusive) technology, can collect velocity, flows, and occupancy data when they are deployed along the roadside. A single above-ground radar sensor mounted on a pole adjacent to the roadway can monitor multiple lanes of traffic. Since the radar detection is strongly impacted by the road environment, radar is more widely implemented on highways rather than in urban areas.

Alternatively, video-based detectors analyze the video image input. Different approaches are used by video detection sensors. Some analyze the video image of a target area on the pavement and as a vehicle passes through the target area this change in the image is processed as occupancy data. Another approach identifies when a target vehicle enters the video field of view and tracks the target vehicle through this field of view. Coverage Area

Currently, the City of Tallahassee does not have loop detectors deployed in each lane of every signalized intersection. The current loops detect occupancy at each signal approach for signal actuation. This deployment project recommends the installation of loops at every intersection to allow for detection of speed and volume in addition to occupancy. With over 350 intersections

2 Klein, et al., Sensor Technologies and Data Requirements for ITS. 2001.

a phased deployment that occurs over multiple fiscal years is recommended. The ideal time to undertake this sort of project would be during intersection projects with potential digging or trenching. Also, all newly constructed signalized intersections should include the installation of two loop detectors in every lane for every intersection approach. Project Benefits

As the City progresses with collecting advanced performance metrics, deploying traffic responsive and adaptive traffic signal control, more advanced detection is necessary to collect the required data. Upgrading the system detectors will benefit the active management of the roadway network. According to FHWA, the benefits of in-pavement inductive loop include3:

⚫ Provides basic traffic parameters (e.g., volume, presence, occupancy, speed, headway, and gap) ⚫ Insensitive to inclement weather such as rain, fog, and snow ⚫ Provides best accuracy for count data as compared with other commonly used techniques ⚫ Common standard for obtaining accurate occupancy measurements

Inductive loop detectors continue to be widely used to monitor traffic flow and control signals because of their relatively low cost, maturity, and aesthetics. The operation of inductive loop sensors is well understood and their application for providing basic traffic parameters represents a mature technology. The equipment cost of inductive loop sensors is lower when compared to over-roadway sensors. CCTV Cameras

CCTV cameras play an important role in the operation of the transportation ne twork. CCTV cameras provide the ability to see traffic situations in real-time and assist with verifying the existence of incidents prior to dispatching response crews. Additionally, CCTV cameras monitor traffic flows along a corridor, enabling City staff at the RTMC to provide active arterial management by selecting timing plans or adjusting signal timings based upon the observed traffic flow patterns.

The City of Tallahassee currently has 97 analog cameras deployed. A recommended strategy based on the traffic management needs of the City is to expand the network of arterial cameras and upgrade all analog cameras to Internet Protocol (IP) cameras. These cameras will provide surveillance capability for the City to help identify incidents, equipment malfunctions, or general traffic conditions around intersections. This strategy also contributes to reduction in incident response time, which has a direct impact on incident clearance times and congestion. The installation of new CCTV cameras and the upgrade of the existing camera system will include the process of integrating the cameras for operations at the RTMC.

3 FHWA. Overview of Vehicle Detection and Surveillance Technologies. 2014.

Coverage Area

Cameras should be installed at major intersections along major arterials. Locations for additional CCTV deployments throughout the City were determined based on any gaps in CCTV coverage, and other factors including:

⚫ Locations that experience high crash rates ⚫ Locations where signal timing may need to be changed frequently based on traffic or weather-related conditions ⚫ Locations where unplanned events frequently occur with negative impacts on progression and cause severe delays

A review of the major corridors was completed with special consideration placed on the traffic and safety focus areas throughout the City. As discussed in the Needs Assessment section, data provided by RITIS was analyzed to determine information regarding existing congestion status and bottlenecks. As a result of the high-level evaluation, the following signalized intersections were identified as ideal locations for deployment of CCTV cameras.

1. Capital Circle NW & Monroe Street 18. Basin Street & Tennessee Street 2. Miller Landing Road & Meridian Road 19. Bronough Street & Virginia Street 3. Brickyard Road & Highway 90 W 20. Calhoun Street and Virginia Street Midway 21. Aenon Church Road & Blountstown 4. Capital Circle NW & Fred George Road Highway 5. North Monroe Street & Talpeco Road 22. Pensacola Street & White Drive 6. Monroe Street & Sessions Road 23. College Avenue & Duval Street 7. Meridian Road & Timberlane Road 24. Calhoun Street & College Avenue 8. High Road & Old Bainbridge Road 25. Gadsden Street & Park Avenue 9. John Knox Road & Meridian Road 26. Park Avenue & Victory Garden Drive 10. Centerville Road & Fleischmann Road 27. Ausley Road & Jackson Bluff Road 11. Fleischmann Road & Welaunee 28. Jackson Bluff Road & Lipona Road Boulevard 29. West Gaines Street & Stone Valley Way 12. Capitol Plaza Boulevard & Thomasville 30. Apalachee Parkway & Conner Road Boulevard 13. Betton Road & Centerville Road 31. Magnolia Drive & Monroe Street 14. 7th Avenue & Duval Street 32. Orange Avenue & Wahnish Way 15. 6th Avenue & Gadsden Street 33. Adams Street & Paul Russell Road 16. Aenon Church Road & Tennessee Street 34. Monroe Street & & Paul Russell Road 17. Blountstown Highway & Tennessee 35. Capital Circle SW & Springhill Road Street The proposed locations listed above are illustrated in Figure 17. It is recommended that the project be segmented into phases to allow deployment in stages. Locations with higher traffic volumes and of higher importance as noted by City staff were assigned Priority 1. All other

locations are considered Phase 2. The numbering of the locations in the graphic directly correlate to the list above. Project Benefits

Upgrading the City’s existing cameras to IP has several benefits including:

⚫ real-time video streams at a higher resolution ⚫ accommodation of increased scalability ⚫ providing the potential for video analytics

High quality video allows for real-time observation of traffic conditions, incident management, hurricane/disaster management, signal display verification and maintenance, and roadway maintenance/construction. Video observation can be used for verifying the results of traffic management strategies, such as signal timing changes or work zone diversions, and for detection and verification of crashes.

Figure 17: Proposed CCTV Camera Locations

Smart Work Zones

Smart Work Zones refer to the deployment of ITS technologies and strategies to increase the safety of construction workers, provide real-time travel information, and efficiently route motorists in and around a work zone. Portable traffic management systems, dynamic message signs, dynamic lane merge systems, and variable speed limit systems are a few examples of technologies that can be deployed individually or in combination as a smart work zone during major construction projects. They are usually deployed on a temporary basis until the interruptions from roadway construction are over. These technologies typically produce data and images that are processed for actionable information. In some cases, the technology is designed to process the data instantly and then take immediate action without human intervention (e.g. end of queue detection triggering an upstream portable changeable message sign to alert approaching motorists). In other cases, the data is used by operators to achieve situational awareness. Once alerted to unfavorable conditions, operators quickly follow, or verify pre-planned protocols to respond to these incidents and situations 4. Coverage Area

The components of a smart work zone system are portable and designed to be deployed at various locations throughout the City as the need arises. Project Benefits

Deployment of smart work zones improves traffic safety and efficiency ahead of and through construction areas. A review of 2018 crash data provided by Signal Four Analytics for the City of Tallahassee was completed and 25 work zone related crashes were reported over the course of the year. Demand for smart work zones is imminent as the number of construction projects programmed by the City of Figure 18: Mobile Camera Trailer Tallahassee continues to increase. Source: EarthCam.net As a strategy to improve safety in work zones throughout the City, this project includes the procurement of portable camera trailers and queue detection trailers. These devices will allow City staff to monitor congestion at or near active work zones, as well as adherence to Maintenance of Traffic requirements. Because smart work zones typically involve the production and use of information, feedback from these systems in the form of performance metrics can be used to refine strategies to achieve the goal of improving efficiency and reducing the crash rate in construction work zones.

4 TxDOT. Design Guidelines for Deployment of Work Zone Intelligent Transportation Systems. 2018.

Flashing Yellow Arrows

Flashing yellow arrow (FYA) traffic signals feature a flashing yellow arrow in addition to the standard red, yellow, and green arrows. When illuminated, the FYA allows waiting motorists to make a left turn after yielding to oncoming traffic. This signal improves intersection efficiency by allowing more left turns during each signal cycle. The FYA improves intersection safety by providing clearer instruction to left-turn drivers during the entire signal phase. Their use in the same signal head with a solid green arrow provides traffic engineers with more options to handle variable traffic volumes. During higher traffic volume periods of the day the solid green arrow for protected left turns can still be used if appropriate for traffic and site conditions. But when traffic volumes decrease, the permissive FYA can be displayed to reduce the delay motorists experience in making left turns. Figure 19: Flashing Yellow Arrow Source: Indiana Department of Transportation https://www.in.gov/indot/3202.htm

Coverage Area The FYA is the City’s preferred alternative over the traditional five- section head (shown in Figure 20 to the right) for protected/permissive left turn phasing. This project targets new traffic signals and upgrades to existing locations where the current traffic signals’ service life has been reached.

Project Benefits Figure 20: Five-Section Head

A comprehensive National Cooperative Highway Research Program (NCHRP) study demonstrated that FYAs are superior to traditional yield-on-green indications in terms of driver understanding and compliance, reducing severe crashes by 25 percent, while at the same time delivering greater operational efficiency (less delay). Also, left-turn traps are avoided when the FYA is tied to the opposing through green indication. A left-turn trap occurs when a driver is making a left on a permissive phase and then becomes trapped in the intersection while the light turns yellow. The driver sees that the adjacent through traffic also receives a yellow light and assumes the same for the opposing through. The driver then proceeds through the intersection, possibly causing a T-bone type crash. The FYA offers better driver recognition and eliminates left turn traps, all resulting in a safer intersection. Additional benefits of the transition to F YAs include keeping motorists safer during heavy traffic, reducing delays when traffic is light, and providing more opportunities to make a left turn.

Travel Time Reliability System Expansion

Bluetooth detectors are used alongside a data aggregation software as a travel time reliability system for agencies to gather real-time traffic data. Bluetooth travel time detectors scan an area to check if any Bluetooth enabled devices are detected. Once a vehicle equipped with Bluetooth devices drives into the detection range of a Bluetooth reader, entry and exit time stamps of the devices are recorded. Therefore, travel time and travel speed can be determined between points on the roadway. The Bluetooth data gives a straight measurement of travel time between pairs of scanners. The data includes the “duration” of time required for Figure 21: Travel Time Detection Concept the vehicle to pass the range detection limits of the Bluetooth scanner.

To achieve the City’s need of managing nonrecurring congestion, expanding the travel time system is recommended in conjunction with an ATSPM dashboard. The expansion will allow the City to calculate travel times, report the performance of the system, and further analyze collected data (e.g. travel time index, buffer index, etc.). The software capabilities would include calculations from the timestamps of paired detections to identify the travel time and recorded speed across the known distance between detectors. This information can then be displayed on a website, via mobile applications, or on variable message signs installed along the road network. Coverage Area

Bluetooth detectors should be installed at major intersections, along major arterials, and key points along freeways. Locations for additional deployments throughout the City were determined based on gaps in Bluetooth coverage, the planned communications network expansions, and other factors including:

⚫ Locations where signal timing may need to be changed frequently based on traffic or weather-related conditions ⚫ Locations where unplanned events frequently occur with negative impacts on progression and cause severe delays

A review of the major corridors was completed with special consideration placed on the traffic and safety focus areas throughout the City. As discussed in the Needs Assessment section, data provided by RITIS was analyzed to determine information regarding existing congestion status and bottlenecks. Specifically, a weekday travel time index analysis was conducted using data

from January 1st, 2018 through December 31 st, 2018. As a result of the high-level evaluation, the following arterial corridors were identified as ideal locations for deployment of Bluetooth detectors:

1. Bannerman Road & Meridian Road 14. Centerville Road & Fleishmann Road 2. Monroe Street & Perkins Road 15. Dempsey Mayo Road & Miccosukee 3. Fred George Road & Mission Road Road 4. Brickyard Road & Highway 90 W 16. Mahan Drive & Pedrick Road Midway 17. Blountstown Highway & Geddie Road 5. Centerville Road & Roberts Road 18. Tennessee Street & White Drive 6. Centerville Road & Shamrock Street 19. Calhoun Street & Virginia Street 7. Capital Circle NW & Tharpe Street 20. Calhoun Street & Park Avenue 8. Old Bainbridge Road & Salmon Drive 21. College Avenue & Duval Street 9. High Road & Old Bainbridge Road 22. College Avenue & Gadsden Street 10. Bradford Road & Meridian Road 23. Magnolia Drive & Park Avenue 11. Armistead Road & Thomasville Road 24. Pensacola Street & Railroad Avenue 12. Betton Road & Centerville Road 25. Franklin Boulevard & Lafayette Street 13. Blair Stone Road & Miccosukee Road 26. Lafayette Street & Magnolia Drive

Figure 22 shows the locations graphically and the numbering of the locations in the graphic directly correlate to the list above. Project Benefits

A comprehensive network of Bluetooth detectors allows real-time reporting of travel times. Live data is essential for critical operational decision making for events, traffic management operations, and active arterial management. It is also beneficial for archiving data captured for post-event project analysis and reporting and providing origin-destination information. These units will be used to provide real-time travel time to road users as well to provide archived travel time data to support operations and performance measurements.

Figure 22: Proposed Bluetooth Locations

Cabinet Upgrades

The traffic cabinet houses the signal controller and other vital intersection electronic equipment that manages traffic flow. This project will contribute to the modernization of the City's traffic signal system. The replacement of the traffic controllers was completed in 2016. The detectors, switches, and cabinets are all equally integral components of the traffic signal system. The City’s current cabinets are a derivative of the Caltrans 332 style cabinets, 552, 660AT and 660ATX. New cabinets will be advanced transportation controller (ATC) high density cabinets with sufficient space for ITS devices. Upgraded cabinets will provide a more favorable environment for the new controllers and their operations. Coverage Area

The coverage area for this project is citywide and covers all intersection locations. Project Benefits

Cabinets meeting the proposed Advanced Traffic Controller (ATC) standard facilitate the movement of vehicles, people, and goods more safely and efficiently, while also providing a growth platform for operating in a connected and autonomous vehicle (CAV) environment. Upgrading the current cabinets to ATC cabinet will eliminate the need, expense, and space required to purchase and install additional cabinets to house additional cabinet equipment (e.g. battery backup system). Having adequate space in the cabinet for additional controller cabinet equipment means an increase in the limit of input and output devices. This translates to more features for more types of users than the previous cabinet, which will prove to be useful as the transportation system becomes more complex. The option also exists to obtain an energy- efficient ATC Cabinet which has lower power requirements ultimately costing less money to operate over time. Managed Field Ethernet Switch Replacement

This project will contribute to the modernization of the City's traffic signal system which will include the replacement of the controllers (completed), detectors, switches, and cabinets. Replacement of hardened, device level managed field Ethernet switches for ITS projects is a long-term priority for the City.

Managed switches are often referred to as intelligent switches, offering advanced control and used for applications requiring network traffic monitoring or segmentation and a high bandwidth. They use software to analyze and improve network performance, and users are able to choose the optimal operating parameters for the application at hand. Coverage Area

The coverage area for this project is citywide and covers all intersection locations.

Project Benefits

The more complex or likely a network will grow in the future; the more managed switches are needed. The following have been identified as benefits for utilizing managed field ethernet switch5:

• Advanced management and troubleshooting capabilities – having the ability to manage and monitor diagnostics and network performance capabilities • Network traffic optimization - the ability to examine the traffic flow and decide how to control and optimize it • Cybersecurity features and security access – the ability to limit network access to only trusted devices and prevents users from setting up an unauthorized sub -network Connected Vehicle Infrastructure

The Emerging Technology section included a discussion on Communications for Autonomous and Connected Vehicles. The SPaT challenge laid the foundation for DSRC deployment in the City. This project builds on that successful implementation and extends the existing DSRC corridor. Coverage Area

Following successful testing of the pilot corridor, this project extends the DSRC deployment west along US 90 (Tennessee Street). The additional 21 intersections extends the corridor to create a 15-mile connected vehicle test bed for the City of Tallahassee.

5 Advantech. Top Benefits of Using Managed Ethernet Switches. October 22, 2018

Project Benefits

The benefits of deploying DSRC is that it helps connected vehicles identify nearby and looming dangers and allows them to react accordingly. These applications can support improvements in both safety and mobility by reducing the risks of collisions. ATMS Upgrades

ATMS Software is a long-term investment by a traffic management agency. The City of Tallahassee has used the TATMS platform since 1999. In the last 20 years, it has been necessary for Kimley-Horn to upgrade KITS (along with all major ATMS software suppliers in the industry) several times due to the continual evolution of software technology, computing hardware, and operating systems. For example, Windows 7™ is officially at end-of-life and will no longer be supported by Microsoft™ at the end of 2019.

While KITS is compatible today with Windows 10, and Windows 10 will likely be supported by Microsoft for at least the next five years, there is no guarantee that the operating software will not be replaced. Additionally, new technologies will be invented that could increase the efficiency or capabilities and may require updates to the ATMS software. Coverage Area

The coverage area for this project is citywide. Project Benefits

While standard procurement of software includes a warranty against defects, standard provisions of warranty do not typically include access to new features or functionality that is developed after procurement. Access to new features and modules, as well as support from developers or customer service representatives, is usually packaged in a service from the provider called software maintenance. Maintenance agreements protect the agency against unknown changes to underlying technologies such as operating systems, as well as providing agency access to upgrades and features at a lower cost of acquisition.

Software maintenance may provide other services such as off-site database backup redundancy, remote and on-site diagnostic support from software professionals, and peer-to-peer technology transfer opportunities. Budgeting for software system maintenance, just like field hardware maintenance, typically proves less costly over the long-run than a strategy of replacing mission critical software on a 10 to 15-year basis when the underlying hardware and software tools are at end-of-life.

TRANSIT MANAGEMENT

Transit service provided to the traveling public is one of the most important services for a City and a region to focus on due to its cross-jurisdictional services and connection with the arterial

and freeway transportation networks. Coordination with local transit management agencies was an important component while compiling this ITS Master Plan, in order to incorporate mult i- modal users of the network and support mode shift. There is one major transit management agency in the Tallahassee area, StarMetro.

StarMetro manages the regional transit bus system including vehicle management and voice communications with each transit vehicle. StarMetro is responsible for regional transit planning, transit public information, the management and operation of regional bus and dial -a-ride services.

The primary objective of this functional area is strategies targeted at incorporating transit services in recurrent and non-recurrent congestion management. Transit agencies should be involved in the sharing of traffic information that may impact services including road construction, service complaints, special events, and road closures. Based on this need, the recommended strategy for consideration are listed below. Transit Signal Priority

The primary goal of Transit Signal Priority (TSP) is to increase transit ridership by reducing bus travel times and improving on-time bus performance through minimizing delay at the signalized intersections. There are several available technologies for achieving TSP detection including optical and radio, and there are two types of TSP triggering approaches including locally triggered and centrally triggered. For a locally triggered or distributed system, traffic signal equipment used for TSP operations works with the same preemption equipment allowing emergency vehicles to communicate with traffic signals. However, unlike the “high priority" emitters used by emergency vehicles, buses use “low priority" emitters. These emitters are installed inside the bus and typically cannot be controlled by the bus operator. Also, whereas high priority operations will truncate or skip signal phases, low priority operations do not skip phases, and the timing changes are limited to a portion of the signal cycle time. Low priority operation increases the likelihood that the buses will not stop at the signal, but it is not guaranteed. If a high priority emergency vehicle preemption call is received at an intersection after a low priority TSP call is received, the low priority call will be cancelled in order to serve the high priority call.

A TSP system adjusts traffic signals using sensors or probe vehicle technology to detect when a bus nears a signal-controlled intersection. When a vehicle is detected, and approved control strategies are met, the signal modifications typically turn the traffic signals to green sooner or extend the green phase longer thereby allowing the bus to more quickly pass through the intersection.

GPS-based TSP systems use pre-defined GPS mapped zones for each traffic signal to trigger TSP signal calls. When a bus enters the pre-defined zone, the TSP call is made via radio, from the on-

board bus equipment to a phase selector at the traffic signal controller. When the bus leaves the zone, the call is terminated.

In a centrally triggered or centralized TSP control system, the vehicle communicates directly with a traffic management center. With this type of system, no preemption hardware is needed on the vehicle or at the intersection. A robust communication network is required that connects vehicles and intersections to the traffic management center. The entire system is managed and monitored from a central location. Coverage Area

StarMetro, the transit system, for the City of Tallahassee, operates 12 cross-town routes, as well as university shuttles for Florida State University (FSU) and Florida Agricultural & Mechanical University (FAMU). A pilot TSP project along Tennessee Street has been discussed, however no additional information has been provided by StarMetro about this project or plans for future TSP deployments. Project Benefits

According to the National Association of City Transportation Officials (NACTO), active TSP can reduce transit delay significantly. In some cases, bus travel times have been reduced around 10%, and delay was reduced up to 50% at target intersections.

TRAVELER INFORMATION

Motorists have an increasing desire and need for accurate, timely information to help them decide how to reach their destinations quickly and safely. Traveler information falls into two broad categories: pre-trip and en-route. This information may be distributed using several different communication technologies. Public agencies have historically collected the real-time information and distributed roadway conditions through either public or private channels.

The primary objectives of this functional area are strategies targeted at incorporating new technologies and systems to support additional real-time traffic condition and traveler information dissemination to the public. Based on this need, recommended strategies that provide travelers with a one-stop-shop for public information – incident warnings, work zone, and events – are described below. Website Connectivity

Mobile technology is shifting the way transportation-related information is disseminated and obtained. The ability to access real-time information on smart phones or tablets provides a channel through which transportation agencies can push information to system users (internal and external). The City’s need is to provide travelers with real-time travel-times, incident information, weather/roadway conditions, roadway construction activities, transit delay

information, travel mode options and locations, parking availability, and other travel-related information to give travelers an opportunity to optimize their trips.

Currently the City disseminates information regarding current traffic conditions to motorists using the Driver Information System (https://www.talgov.com/gis/driverinfo/default.aspx) and the City of Tallahassee Twitter account. This project involves a reevaluation of current City processes to identify opportunities to provide more accurate, real-time data across multiple platforms. With information about travel conditions, travelers can make intelligent decisions about alternative routes or modes, and take mid-trip corrective actions to avoid delays. Coverage Area

The coverage area for this project is citywide as the website will be accessible to all City residents. Project Benefits

Website platforms are a popular way to make traveler information available to the public in a consolidated and easily accessible manner. The City should always consider opportunities to provide information through a mobile application, but should further investigate how the application is developed and where it would reside.

I-10 Trailblazers

Trailblazer signs are used to guide motorists along alternate routes during major incidents and freeway ramp closures. Typically, the signs route motorists exiting the freeway or info rm motorists already traveling the alternate route to continue bypassing the freeway to entrance points further downstream. A recommended strategy to address the traffic management needs related to incident management is expanding the use of dynamic signage to provide traffic information to travelers. Partnering the existing DMS deployed along I-10 with arterial trailblazer DMS would allow the City of Tallahassee to guide traffic along designated routes during incidents or special events, thus increasing throughput and allowing local streets to return normal operations quicker.

Trailblazer signs are any sign that serves the purpose of providing route guidance and traveler information to traffic along local arterials. Trailblazers can include a static sign ( i.e. typical roadway guidance signs), an extinguishable sign (i.e. on/off), or arterial DMS (i.e. fully changeable matrix). Static signs and extinguishable signs provide information limited to the direction of travel only, and are most appropriately used during the deployment of one particular alternate route during an incident on another route. A static sign with a highway shield and an extinguishable message sign with multiple directional arrows can be installed at key decision points along alternate routes on existing traffic signal poles, streetlight poles, or new sign posts.

These signs in tandem are able to guide vehicles along pre-defined routes to allow the City to minimize traffic delays along local streets due to major incidents. Full DMS allow for the flexibility in displaying a variety of route guidance messages and incident information, as well as provide the capability of displaying other special event messages. However, fully dynamic signs need to be larger to provide a variety of useful traveler information. Therefore, construction costs and impacts are higher for full dynamic trailblazers than the static message sign option. Trailblazers implemented in concert with timing plans can serve to flush out traffic during incidents. Coverage Area

Signs are typically installed at one or a combination of the following locations:

⚫ In advance of an intersection on new poles to advise drivers of an upcoming decision point ⚫ In advance of an intersection on existing luminaire pole ⚫ At an intersection on existing traffic signal structure

The exact location and type of sign will be dependent on environmental conditions, field conditions, and structural evaluation. If smaller static message signs are deployed, existing traffic signal and street lighting poles may be utilized for the trailblazer signs instead of new sign posts.

Preliminary locations were identified by the City for an initial phase of trailblazer deployment, as shown on the map on the following page. FDOT District 3 and the City are evaluating these locations and developing a Concept of Operations in an ongoing Trailblazer Feasibility Study. Project Benefits

Trailblazers need to be installed as a complete system to be fully effective. The optimal location for deployment is along routes where considerable traffic diverts off the freeway and utilizes arterials for cut-through routes. Deployment of this system provides the ability to transmit information on traffic flow and incidents to a greater number of travelers. This, in turn, can lead to benefits such as reductions in delays and traffic volume if travelers react to traffic advisories (whether via message signs, advisory radios systems, websites, applications, etc.) and use alternate routes or alternate modes of transportation.

PERFORMANCE MEASURES

Performance monitoring is the collection, analysis, and reporting of data to track and assess resources used, work produced, and whether specific goals are achieved. An important aspect of performance monitoring is an analysis of why goals are (or are not) being achieved, and accomplishments to meet goals.

Performance monitoring uses the science behind what agencies are doing to justify public funds. This approach is achieved through a tool set that provides both the general public and public

agency staff with a way to assess the transportation system operations and identify the strengths and weaknesses of the system in order to maintain a high level of service to the public. Without consistent performance data updates, it is difficult to maintain reliabl e traffic system performance. Through monitoring system performance, an agency can leverage a funding strategy to most efficiently improve the transportation system. ATSPM Dashboard

For the City to successfully continue deployment of ITS central equipment, collection and documentation of benefits realized by City staff is necessary. This strategy involves gathering “big data” generated by all the deployed technologies and performing analytics to improve mobility and safety. Ultimately, performance metrics are measures used to assess the performance of a transportation system and capture the economic benefits of investments, tracking the progress made towards reducing congestion and improving safety.

Performance monitoring, in essence, requires data to examine progress against goals. Based on the goals established for this program, specific performance measures are first established, including frequency and method of data collection. Automated Traffic Signal Performance Measures (ATSPMs) consist of a high-resolution data-logging capability added to existing traffic signal infrastructure and data analysis techniques. ATSPMs provides agency professionals with the data to drive a dashboard application to provide actionable information to identify and correct deficiencies. With dashboards, operators can manage traffic signal maintenance and operations in support of an agency’s safety, livability, and mobility goals.

The first phase of ATSPM implementation in Tallahassee started in the summer of 2017, where FDOT in partnership with the City of Tallahassee deployed ATSPM along the Mahan Drive (US 90) SPaT corridor. The City has since implemented several improvements to signal timing using the ATSPM metrics and has expanded the ATSPM system to all signals.

In an effort to reduce staff time spent analyzing data and improve the depth and breadth of traffic signal performance, it is recommended that the City of Tallahassee develop an ATSPM dashboard. The dashboard will provide near real-time transportation network performance information. The dashboard will help City staff analyze data to determine how the transportation system is operating compared with recent traffic trends and performance metrics associated with individual corridors. The system will automatically flag current operations that are outside accepted performance parameters. These checks are also monitored to determine if an occurrence is a one-time instance or an ongoing situation. Coverage Area

The coverage area for this project is citywide.

Project Benefits

According to FHWA, the technology is cost effective, as ATSPMs can be applied to a wide range of signalized intersections and use existing infrastructure to the greatest extent possible. ATSPMs will also support the validation of other technologies and operational strategies, such as adaptive signal control and CV applications. Several benefits of an ATSPM implementation include:6

⚫ Increased Safety: A shift to proactive operations and maintenance practices can improve safety by reducing the traffic congestion that results from poor and outdated signal timing. ⚫ Targeted Maintenance: ATSPMs provide the actionable information needed to deliver high-quality service to customers, with significant cost savings to agencies. ⚫ Improved Operations: Active monitoring of signalized intersection performance lets agencies address problems before they become complaints.

ATSPMs uses the science behind what agencies are doing to demonstrate to the public that their dollars are being spent wisely. This approach is often achieved through a dashboard that provides both the general public and public agency staff with a way to assess how the transportation system is operating and to identify the strengths and we aknesses of the system in order to maintain a high level of service to the public. Without consistent performance data updates, it is difficult to maintain reliable traffic system performance. Performance measures build trust and a culture that agencies work for the public. The City currently has on ongoing subscription service with Traffop to provide a real-time ATSPM dashboard. This project includes the yearly service as well as any necessary future enhancements.

BICYCLE DETECTION

The City has invested in bike safety through the use of specific traffic signal applications and movement compliance at intersections. The primary objective of this functional area are strategies targeted at supporting bicycle movements through expanded ITS related saf ety applications. These strategies include innovative technology that aim to improve the safety and mobility of multi-modal facilities. Based on this need, recommended strategies for consideration are listed below. Bicycle Detection Expansion

The City of Tallahassee’s population demographics, including two major universities, make it critical to provide multiple transportation options around the City. These modes are important for daily travel but also for recreational purposes to draw in visitors to the City and help the City maintain its desired character and community feel. Tallahassee has recently earned the coveted Silver Level Bicycle Friendly Community (BFC) designation. This award recognizes communities for actively supporting bicycling by providing safe accommodations and encouraging community members to bike for recreation and transportation. As one of only seven Florida communities to

6 US DOT FHWA. EDC-4: Automated Traffic Signal Performance Measures (ATSPMs). 2019.

receive the Silver Level Bicycle Friendly Community designation, installation of loops or other technology for detecting bicycles at intersections will allow the City to continue the trend of bicyclist safety.

Bicycle detection is used at actuated signals to alert the signal controller of bicycle crossing demand on a particular approach. Bicycle detection occurs either through the use of push- buttons or by automated means (e.g. in-pavement loops, video, microwave, mobile applications, etc.). Inductive loop vehicle detection at many signalized intersections is typically calibrated to the size or metallic mass of a vehicle. For bicycles to be detected, the loop must be adjusted to account for bicycle metallic mass. Otherwise, undetected bicyclists must either wait for a vehicle to arrive, dismount and push the pedestrian button (if available), or cross illegally. In lieu of loop detection, video or mobile applications may provide increased detection capabilities. Proper bicycle detection meets two primary criteria: 1) accurately detects bicyclists; and 2) provides clear guidance to bicyclists on how to actuate detection (e.g., what button to push, where to stand). Coverage Area

Ideal candidates for bicycle detection include locations where cyclist volumes are heavy as well as locations where there are marked and signed routes for bicyclists. A review of data available provided by the Tallahassee–Leon County Planning Department was used to evaluate bicycle trip patterns. The data available through the planning department provides an overview of popular routes for cyclists based on yearly counts conducted at locations with high bicycle traffic. Data for the most recent four years were provided and the locations with the highest average bicyclists per hour are listed in the table below.

Table 6: Average Bicyclists per Hour – 2014 to 2018

Intersection Average Bicyclists per Hour

Call Street at Stadium Drive 52.8

Tennessee Street at Call Street 52.8

Chieftan Way at Pensacola Street 21.5

Call Street at Stadium Drive 21.5

Call Street at Chapel Drive 17.2

Pensacola Street at Varsity Drive 14.3

Currently in-pavement loops are deployed at three locations near FSU, specifically along MLK Boulevard. Higher bicycle volumes are concentrated around the FSU campus as the table above and supporting data show. The top three locations identified below are ideal candidates for additional bicycle detection deployments near FSU:

⚫ Call Street at Stadium Drive ⚫ Tennessee Street at Call Street ⚫ Chieftan Way at Pensacola Street

Project Benefits

The City currently uses in-pavement, inductive loops for bike lane detection. According to NACTO, the observed benefits for bicycle detection include:

⚫ Improves efficiency and reduces delay for bicycle travel ⚫ Increases convenience and safety of bicycling and helps establish bicycling as a legitimate mode of transportation on streets ⚫ Discourages red light running by bicyclists without causing excessive delay to motorists ⚫ Can be used to prolong the green phase to provide adequate time for bicyclists to clear the intersection

The City’s existing traffic signal controllers have the capability to provide bicycle phase timings when a bike-only detector is triggered. Since the City has already deployed in-pavement bicycle detection, and it appears to be operating successfully and accurately, the City should continue to use inductive loops for bicycle detection. As additional intersections are added, inductive loops for bicycles should be considered to expand bicycle detection citywide. Additionally, deployment of a mobile application using GPS-based advanced detection that integrates with bicycle detection would further improve bicyclist safety and efficiency.

TRANSPORTATION MANAGEMENT CENTER

Traffic Signal Management Plan

A Traffic Signal Management Plan is designed to provide step-by-step instructions for current activities related to traffic signal design, operations, maintenance, and management. This plan is intended to clearly define objectives, relating them to the City's goals, and detail a structure to show how the activities of all staff involved in traffic signal mana gement support those objectives. This plan not only offers a platform for introducing new staff to the processes relevant to their roles, but illustrates the City’s structured approach to traffic signal management. The plan will ultimately contribute to the following:

⚫ Provide a succinct description of all activities required for agency staff to manage the traffic signal program ⚫ Specify an approach to strategically shift maintenance, operation, and design from reactionary to proactive ⚫ Effectively plan for needed capital improvement ⚫ Improve internal and external support for the traffic signal program

An additional component of the Traffic Signal Management Plan is a staffing plan.

Coverage Area The coverage area of this project is the TMC as the plan will b e used by the staff.

Benefits Developing a Traffic Signal Management Plan will streamline processes and create a more efficient training platform for newer TMC staff members. The detailed staffing plan would document future staffing needs and responsibilities. A staffing plan ensures appropriate staffing levels to accommodate the recommended strategies and technologies suggested within this Master Plan.

COMMUNICATIONS

The element of ITS infrastructure that ties everything together is communications. The quality, type, and distribution of communication infrastructure has profound impacts on the City’s ability to expand its current ITS applications and deploy new applications. The City currently has 190 miles of fiber optic cable. Additionally, the City has buried fiber, which unlike aerial, is protected from weather damage by being buried below the freezing point in the ground. This makes buried fiber deployments more reliable than aerial fiber deployments in areas that experience extreme weather (e.g. hurricanes, freezing temperatures, etc.).

The City’s current communication system includes both fiber optic cable and cellular modems. The ATMS fiber infrastructure includes six existing fiber-optic trunk lines, with fiber counts on each cable varying throughout the City (36-72 strands). A fiberoptic backbone was also installed along I-10 and US 90 from western Gadsden County to the RTMC. This 96-fiber trunk line expanded the freeway management system by incorporating the Tallahassee interstate system. The following sections present the high-level bandwidth analysis accounting for all recommended ITS devices previously discussed, as well as the recommended strategy for developing a more robust communications network. Bandwidth Demand

At a high level, ITS and signal system elements are considered field devices. Communicating with field devices require communications bandwidth. With the proposed ITS technology expansion and upgrades, an increase in bandwidth to support the expanded systems is a necessary step for the City. This section reviews the bandwidth associated with center -to field links as well as the anticipated center-to-center requirements. Table 7 presents a high-level summary of the aggregate bandwidth demand for the planned system. The projected number of devices is based on the previously recommended number of additional devices. If no projected devices were quantified a ten percent growth rate was assumed.

Current, planned, and future connected vehicle devices account for the majority of the anticipated bandwidth demand. A conservative estimate of connected vehicle unit bandwidth

demand was used to account for emerging technologies and potential unforeseen technological advancements. This assessment is important for developing an understanding of field -to-center bandwidth needs as well as center-to-center bandwidth needs for the back-up data center and gaining an overall perspective on system bandwidth utilization.

Table 7: Preliminary Bandwidth Analysis

PER UNIT EXISTING PROJECTED BANDWIDTH BANDWIDTH DEVICE NO. OF NO. OF DEMAND DEMAND DEVICES DEVICES (MBPS) (MBPS)

Traffic Traffic Signal Controllers 357 393 0.10 39.3 Management UPS 117 129 0.02 2.58 Traffic Management Subtotal 41.88 Microwave Detection 36 40 0.10 4.0 HD CCTV Camera 1 36 3.50 126 Traffic Trailblazers - 13 1.00 13.0 Monitoring Road Weather Information 1 2 0.02 0.04 System (RWIS) Bluetooth Detection 80 106 0.10 10.6 Traffic Monitoring Subtotal 153.64 Connected and Autonomous DSRC Radios 22 43 27 1,161 Vehicles Connected and Autonomous Vehicles Subtotal 1,161 RTMC to City Hall 1 1 10,000 10,000 RTMC to FDOT 1 1 10,000 10,000 Center-to-Center Field Hub A to RTMC 1 1 10,000 10,000 Connections Field Hub B to RTMC 1 1 10,000 10,000 Field Hub C to RTMC 1 1 10,000 10,000 Center-to-Center Connections Subtotal 50,000

The high-level bandwidth analysis was used to guide preliminary communications network recommendations. Communications Network – Redundancy Expansion

A robust fiber network is essential for maintaining communication with the recommended expanded ITS infrastructure. A high-level analysis was conducted to develop communications infrastructure and topology recommendations. Field devices were grouped with o ther devices along similar corridors or within close geographic proximity to form approximately 31 communication groups. To allow for future expansion within communication groups, it is recommended that initial grouping of network devices include approxima tely 15 devices per group. The communication groups were geographically grouped into rings along fiber trunk routes in a manner that attempted to balance bandwidth demands equally across all rings.

Locations for potential field hubs and fiber expansion along new routes were identified to support the different communication groups.

Field hubs are central communication points to which various branch communication lines and field devices are connected. Field hubs are used to collect field device data, then tr ansmit the data directly to the RTMC over the fiber trunk lines, thereby consolidating network traffic and optimizing the use of the available fiber. This provide scalability and flexibility for the overall network.

FDOT District 3 currently has a communication hub at the western extents of the City along I-10. However, it is recommended that future communication planning consider where fiber upgrades will be required to support the field network. New field hubs may be needed to support the network as well. In addition, hubs can also provide improved accessibility to multiple infrastructure assets.

Preliminary proposed hub locations, areas of fiber expansion, and the proposed ring topology are illustrated in Figure 22 and Figure 23. Coverage Area

The coverage area for this project is citywide and encompasses the current and future extents of the fiber network.

Benefits With the bandwidth requirements and application impacts being preliminary estimates, the best way to plan for the future of the ITS deployments and connected vehicles is to provide high bandwidth capable infrastructure at points along important arterials and freeways. Fiber optic cable provides the most reliable, flexible, and robust communications infrastructure for supporting the network requirements of connected vehicles and other emerging technologies.

Figure 23: Proposed Fiber Extension

Figure 24: Proposed Topology and Hub Locations

Budgetary Estimates

High-level estimated costs were prepared for each recommended project. Total cost components include design, construction, capital, and operations and maintenance as applicable. Various high-level assumptions were made to serve as the basis for the cost analysis:

• Unit cost, unless otherwise noted, are based on FDOT historical project bid costs. • Unit costs not available through FDOT are sourced from similar project deployments completed by other transportation agencies. • A preliminary number of locations were assumed for non-geographic projects, where specific locations are not identified. o Flashing yellow arrow (FYA) program cost based on a project of 20 locations. o System Detectors program cost based on a project of 30 locations. o Switch replacement and cabinet upgrade projects based on number of traffic signals (357). • Transit Signal Priority project cost developed based on preliminary route selected. • Trailblazer project cost based on preliminary locations identified in early concept alternatives.

The table below presents each estimated total project cost. The costs are general and presented more as a means for planning level funding requests. High-level project costs with a breakdown by project component is provided in Appendix B. Detailed cost estimates will require refinement during early project level concept development and scoping.

Table 8: Estimated Project Costs

PROJECT TITLE TOTAL COST

Adaptive Traffic Signal Control (US 27) $1,120,000

Adaptive Traffic Signal Control (US 90) $1,430,000

System Detectors $110,000

CCTV Cameras - Phase 1 $210,000

CCTV Cameras - Phase 2 $130,000

Smart Work Zones $20,000

FYA Upgrades $120,000

Travel Time Reliability System - Phase 1 $230,000

Travel Time Reliability System - Phase 2 $140,000

Cabinet Upgrades $7,570,000

PROJECT TITLE TOTAL COST Managed Field Ethernet Switch Replacement $2,180,000

Connected Vehicle Infrastructure $860,000

CCTV Camera Upgrade $980,000

ATMS Upgrades $30,000

Transit Signal Priority $400,000

Website Connectivity $100,000

I-10 Trailblazers $3,267,000

ATSPM Dashboard/ Performance Monitoring $70,000

Bicycle Detection $60,000

Traffic Signal Management Plan $50,000

Communications Network – Redundancy Expansion $7,950,000

Implementation Plan

The City of Tallahassee recognizes the importance of implementing ITS projects. The goal is to better manage traffic and provide a safe travel experience for passenger vehicles, transit, as well as bicyclists and pedestrians. The implementation plan provides guidance to assist the City in implementing the recommendations in a prioritized, efficient manner. A high-level prioritization process was developed to help objectively guide project programming. Projects were prioritized based on four criteria which align with the stated ITS vision. Each of the four criteria were scored and weighted to create a final score for each project. This section summarizes the prioritization criteria and details the prioritization process.

PRIORITIZATION CRITERIA

A methodology was developed to provide a consistent approach to prioritizing project recommendations demonstrating fiscal responsibility and accountability. All recommended projects identified in the previous technical memorandum were scored and prioritized using the methodology described in this section. Criteria Development

Criteria was developed to provide direction and guidance for project prioritization. The following criteria reflect the City’s strategic approach to expansion and is consistent with the vision for the ITS Master Plan. The projects were analyzed based on the following criteria:

• Safety • Mobility • Accountability • Regional Support

Project prioritization relied on a qualitative assessment to evaluate the project’s potential impacts and a data driven process to estimate benefits. Current data used for this process include datasets such as statewide crash data, Regional Integrated Transportation Information System (RITIS), evacuation routes, and estimated infrastructure costs. Project Evaluation

Proposed projects were organized into two categories: geographic and non-geographic. Those with defined project locations were classified as geographic projects and those without defined locations were classified as non-geographic projects. A high-level prioritization rubric was developed to help objectively guide the process. Each recommended project was evaluated using the developed prioritization rubric. Points were awarded to each project based on how well it satisfied each criterion. Projects with higher scores are identified as higher priorities than those earning lower scores.

Additionally, for those geographic projects that received identical scores, these projects were scored again based on a secondary rubric to determine which phase was a higher priority. The methodology for evaluating projects in both categories (geographic and non-geographic) is detailed below.

Safety Determining where safety concerns exist and developing potential solutions to address these concerns is a priority for the City. Safety accounts for 30% of the total prioritization score and is an important element of project evaluation. For all projects, a qualitative sa fety assessment was completed. National case studies similar in nature to the proposed project were used as reference to determine how the proposed project will enhance the safety of the transportation system. A table summarizing the criteria is provided for reference at the end of this section.

For geographic projects, a secondary rubric was developed including a data driven safety criteria. One year of crash data, provided by Signal Four Analytics, was mapped to determine the number of crashes within the extents of a given project. Higher priority is given to projects with a higher number of crashes along the project corridor. Additional safety scoring is based on whether the project is identified as an evacuation route. More points were awarded for projec ts that support evacuation routes.

Table 9: Safety Criteria

CRITERIA DATA SOURCE RESPONSE SCORE

300+ 3 Signals 4 Analytics Number of Crashes 151-300 2 https://s4.geoplan.ufl.edu/ 0-150 1

Percentage of > 66% 3 Project Corridor Florida Division of Emergency Management 33% - 66% 2 Along an Evacuation https://maps.floridadisaster.org/county/EVAC_LEON.pdfn Route 33% < 1

Mobility Mobility is directly correlated to congestion levels and is a key consideration for project prioritization. Mobility accounts for 20% of the total prioritization score and is an important element of project evaluation. For all projects, a qualitative mobility assessment was completed. National case studies similar in nature to the proposed project were used as a reference to determine how the proposed project will mitigate recurring and non-recurring congestion. A table summarizing the criteria is provided for reference at the end of this section.

For geographic projects, a secondary rubric was developed including a data driven mobility criteria. Regional Integrated Transportation Information System (RITIS) Travel Time Index (TTI) data was utilized to identify corridors that have a higher-than-average level of congestion. This criterion awards more points to projects that will impact areas of higher congestion. One year of TTI data was pulled for all project corridors from January 2018 to December 2018. Points were awarded based on thresholds defined in a recent study7 completed by the University of Alabama.

This study quantified congestion using the national performance management research data set and selected TTI thresholds to reflect user perceptions of congestion. Additional mobility scoring is based on whether the project impacts corridors with higher average annual daily traffic (AADT) volumes. Truck volumes were also taken into consideration, with more points awarded to projects along corridors with higher truck AADT.

Table 10: Mobility Criteria

CRITERIA DATA SOURCE RESPONSE SCORE

> 2.0 3

TTI RITIS 1.5 - 2.0 2

1.5 < 1

40,000+ 3 FDOT Transportation Data and AADT 20,000 - 40,000 2 Analytics Office 0 - 20,000 1

15,000+ 3 FDOT Transportation Data and Truck AADT 6,000 - 15,000 2 Analytics Office 0 - 6,000 1

Accountability Project accountability refers to the benefits realized for each recommended project post implementation. A qualitative accountability assessment was completed using the US Department of Transportation’s Research and Innovative Technology Administration (RITA) benefit cost library. Benefit-cost ratios of projects similar in nature were aggregated to estimate project performance post implementation. This criterion awards more points to projects with a higher estimated benefit-cost ratio. This criterion is 25% of the total prioritization score.

7https://res.mdpi.com/data/data-02-00039/article_deploy/data-02-00039.pdf?filename=&attachment=1

Table 11: Accountability Criteria

CRITERIA DATA SOURCE RESPONSE SCORE

> 15 3 High-level estimated costs and B/C Ratio 5 – 15 2 anticipated benefits 5 < 1

Regional Support In some instances, it may be possible to have a proposed project satisfy a significant need that is not demonstrated through available datasets. Consequently, additional consideration was given to stakeholder input on the importance of the needs specific to each project and is accounted for in the regional support criterion. This criterion awards more points to projects that are a consistent priority for local agencies and have strong support of public officials. Points awarded are based on stakeholder input. This criterion is 25% of the total prioritization score. Weighting Scale

The weighting scale was designed with the understanding that each criterion is important to the project as well as overall system success. The weighting was developed to be consistent with the vision and goals established for this Master Plan. Points awarded for each category are weighted based on the percentages detailed below.

• Safety (30%) • Mobility (20%) • Accountability (25%) • Regional Support (25%) As a reference, a summary of the prioritization rubric is included in Table 12. Table 13 describes the secondary geographic that was used to differentiate priorities of projects that received identical scores.

Table 12: Prioritization Rubric

NO. OF CRITERIA DESCRIPTION RANKING RANGE POINTS

High Project provides significant reduction in crash rates. 3 The project's effect on reducing accident rates as well as pedestrian and bicycle safety was Safety assessed. National case studies similar in nature to the proposed project were used as reference to Medium Project provides moderate reduction in crash rates. 2 determine how the proposed project will enhance the safety of t he transportation system. Low Project provides some reduction in crash rates. 1

High Project provides significant improvement to movement of vehicles and freight. 3 The project's ability to improve or enhances movement of passenger vehicles and freight was Mobility assessed. National case studies similar in nature to the proposed project were used as a reference Medium Project provides moderate improvement to movement of vehicles and freight. 2 to determine how the proposed project will mitigate recurring and non-recurring congestion. Low Project provides some improvement to movement of vehicles and freight. 1

High Project's annual benefits are expected to exceed the capital cost. 3 RITA's benefit cost library was used to determine a range of project's potential benefit cost ratio. Accountability A cost benefit analysis provides a common basis that can be used to compare projects. Those Medium Project's annual benefits are expected to exceed half of the capital cost. 2 projects with a higher B/C ratio range were given a higher priority. Low Project's capital costs are expected to exceed the annual benefits. 1

High Project has strong support of project stakeholders. 3 Stakeholder input was used to determine projects that have been a consistent priority for local Regional Support Medium Project has moderate support of project stakeholders. 2 agencies and those that local jurisdictions support. Low Project has little support of project stakeholders. 1

Table 13: Secondary Prioritization Rubric – Geographic Projects

SAFETY MOBILITY ACCOUNTABILITY REGIONAL SUPPORT

Consider how the proposed project Consider the anticipated safety improvements Consider the anticipated mobility improvements of Consider community support for SCALE POINTS will perform against established of the proposed project. the proposed projects. proposed project. goals.

No. of Crashes Evacuation Route RITIS TTI AADT Truck AADT B/C Ratio Stakeholder Input

Project has strong support of project High 3 300+ > 66% > 2.0 40,000+ 6,000+ > 15 stakeholders.

Project has moderate support of Medium 2 151 - 300 33% - 66% 1.5 - 2.0 20,000 - 40,000 3,500 - 6,000 5 – 15 project stakeholders.

Project has little support of project Low 1 0 - 150 33% < 1.5 < 0 - 20,000 0 - 3,500 5 < stakeholders.

PROJECT RANKING

Each of the proposed ITS projects were scored based on the established evaluation criteria. The scores were then translated into a priority ranking, with higher scoring projects receiving a higher priority rank. The tables below illustrate the final project ranking. Appendix C provides the detailed scoring for each of the projects and any assumptions.

Table 14: Project Ranking

Rank Project 1 CCTV Camera Upgrade 2 CCTV Cameras - Phase 1

3 I-10 Trailblazers 4 ATMS Upgrades

5 Cabinet Upgrades 6 ATSPM Dashboard/Performance Monitoring

7 System Detectors 8 Smart Work Zones

9 Transit Signal Priority

10 FYA Upgrades

11 Traffic Signal Management Plan 12 CCTV Cameras - Phase 2 13 Travel Time Reliability System - Phase 1

14 Adaptive Traffic Signal Control (US 90) 15 Travel Time Reliability System - Phase 2

16 Adaptive Traffic Signal Control (US 27)

17 Connected Vehicle Infrastructure

18 Managed Field Ethernet Switch Replacement 19 Communications Network – Redundancy Expansion

20 Website Connectivity

21 Bicycle Detection

HIGH LEVEL DEPLOYMENT PLAN

The rankings were used to group the recommended projects into tiered deployment timeframes. The recommended deployment timeframes does not align directly with the prioritization ranking. The final project sequencing was determined by City staff based on funding availability and City priorities. Projects that will be recurring over multiple fiscal years are listed as programmatic and the yearly cost included. Table 15 shows the recommended timeframes for each of the ITS projects along with estimated costs.

Table 15: Project Deployment Timeframes

DEPLOYMENT TIMEFRAME PROJECT TITLE ESTIMATED COST

CCTV Camera Upgrade $980,000

Near-Term CCTV Cameras - Phase 1 $210,000

(2 to 5-year horizon) Adaptive Traffic Signal Control (US 90) $1,430,000

Traffic Signal Management Plan $50,000

Near Term Subtotal $2,670,000

I-10 Trailblazers $3,267,000

Cabinet Upgrades $5,330,000

Smart Work Zones $20,000 Mid-Term Transit Signal Priority $400,000 (5 to 10-year horizon) CCTV Cameras - Phase 2 $130,000

Travel Time Reliability System - Phase 1 $230,000

Travel Time Reliability System - Phase 2 $140,000

Mid-Term Subtotal $9,517,000

Adaptive Traffic Signal Control (US 27) $1,120,000

Connected Vehicle Infrastructure $860,000 Long-Term Managed Field Ethernet Switch Replacement $2,180,000 (over 10-year horizon) Communications Network – Redundancy Expansion $7,950,000

Website Connectivity $100,000

Long-Term Subtotal $12,210,000

Programmatic Projects ATMS Upgrades $30,000

(yearly recurrence) ATSPM Dashboard/Performance Monitoring $70,000

System Detectors $110,000

FYA Upgrades $120,000

Bicycle Detection $60,000

Programmatic Subtotal $390,000 Mid-term and long-term projects could become a higher priority depending on funding or as opportunities for collaboration or efficiencies become available. However, actual deployment scheduling could be affected by the following implementation factors:

⚫ Project’s Dependence on Other ITS Projects: Project is dependent on other ITS and communications deployments to provide full or partial operations and/or benefit (i.e. the project depends on another project to be deployed first). ⚫ Proximity to Planned Programmed Roadway ITS Project: Proposed project may be able to leverage deployment of support infrastructure and expedite schedule or potentially reduce implementation costs. ⚫ Proximity of Proposed Project to Existing ITS Project: Project may be able to take advantage of an existing ITS project for communications network connectivity and/or infrastructure to reduce ITS project implementation costs. ⚫ Funding Opportunities/Availability: The availability of funding will impact implementation timeframe and actual deployment. Depending on funding levels, a proposed ITS project could be segmented into phases to allow deployment in stages dependent on level of funding.

The City should pursue multiple funding sources for the deployment of the recommended system expansion and enhancement. As a result of the rapidly evolving ITS technologies and their applications to traffic operations and communications, it is recommended that the City continually monitor the recommendations and deployment timeframes proposed as part of this project. Furthermore, the City should closely track the implementation of individual projects to more comprehensively evaluate the overall plan implementation.

STAFFING PLAN

In addition to identifying ITS infrastructure needs, this ITS Master Plan identifies appropriate staffing levels that will allow the City to manage its traffic signal system and ITS network and to support the traveling public more effectively. A few of the projects developed for this plan (e.g., developing a Traffic Signal Management Plan) involve updating processes, which require minimal time and resources to implement. However, most of the recommended projects will require more resources, including increased staffing, in order to implement. Exploring the staffing needs within this ITS Master Plan ensures that there is a realistic consideration of the efforts that are needed to implement it.

The number of traffic signals in the City has steadily increased without a corresponding increase in staff to operate and maintain them. This has created a situation where the City is understaffed for both operations and maintenance of the traffic signal system and ITS network.

Several national sources provide guidance to signal maintaining agencies regarding the recommended staffing levels based on the number of traffic signals needed to be maintained. The Federal Highway Administration (FHWA) developed the Traffic Signal Operations and Maintenance Staffing Guidelines in 2009. This report provides a guideline to estimate the staffing and resource needs required to effectively operate and maintain traffic signal systems. According to the report, ineffective operation and maintenance of traffic signals may have safety implications and contributes annually to millions of hours of unnecessary traffic delays, congestion, fuel consumption and air pollution. The guidelines provided below are intended to assist managers and practitioners with prioritizing and evaluating operations and maintenance staffing needs.

Figure 25: Excerpt from FHWA Guidelines for Staffing (2009)

According to industry standards for traffic signal operations and maintenance, approximately 8.75 to 11.5 maintenance staff and 3.5 to 4.5 engineers are required to manage the City’s 350 traffic signals. To date, the City has been able to complete necessary operations and maintenance functions for the existing traffic signal network. However, as the traffic signal system and ITS network grow, as well as demands on the transportation network, staffing resources for the City’s ITS Program will need to be expanded. Taking into consideration the budgetary constraints of the City, the staffing recommendation is provided below and highlights staffing levels necessary to more effectively operate and maintain the ITS Program.

Table 16: Proposed City Staffing Levels

No. Of Current City No. Of Proposed Staff Position Additional Staff Positions City Positions

STMC Manager 1 1 -

Traffic Signal Timing Engineer 1 2 +1

Traffic Operations Specialist 3 4 +1

Traffic Operations Analyst 1 1 -

Operator 2 2 -

Network Administrator 1 1 -

No. Of Current City No. Of Proposed Staff Position Additional Staff Positions City Positions

Administrative Assistant 2 2 -

ITS Maintenance Technician 6 8 +2

Senior ITS Maintenance Technician 1 1 -

Deploying the additional ITS infrastructure identified in this Master Plan will exacerbate the existing staffing challenges unless a plan is implemented to identify and account for staffing needs as the ITS Program grows. It is recommended that during proj ect programming for traffic signals, ITS infrastructure, or communications projects consideration is given to the staffing levels required to operate and maintain the new infrastructure in addition to the existing infrastructure.

Conclusion

The City of Tallahassee has a forward-thinking approach to implementing state-of-the-art ITS, connected and automated vehicle, smart city, and internet of things applications based on the commitment to existing communications, traffic signal, and data-centric deployments. This ITS Master Plan will play a pivotal role in allowing the City to position for the adaptation of new technologies, to better maintain system infrastructure, to enhance the reliability of the communication network, and to enhance RTMC operations. This plan also provides solutions to meet needs that are focused on smart deployment of technologies which serve multiple purposes and create efficiencies in the services that Tallahassee provides to its residents and travelers.

This ITS Master Plan evaluated existing conditions, assessed current and future needs, identified recommendations to support the City’s established vision, and will facilitate collaboration with partner agencies. The City’s vision for this plan is to “Maximize the transportation system efficiency and performance using innovative technologies and regional collaboration to promote reliable mobility throughout the vibrant capital city region.”

The City of Tallahassee has embraced the challenge of being at the forefront of emerging technologies. As a result of the rapidly evolving ITS technologies and their applications to traffic operations and communications, it is recommended that the City continually monitor the recommendations and deployment strategy included in this Master Plan. At a minimum the City should consider a thorough re-assessment of their vision, strategies, and application of technologies every five years. Furthermore, on an annual basis, the City should closely track the implementation of individual projects to more comprehensively evaluate the overall Plan implementation and continuity with new developments.

Appendix A Stakeholder Meeting Materials

Appendix B Project Cost Estimates

Current 12 Month Moving Average

Appendix C Detailed Project Scoring

Table of Contents